These evolving command arrangements were tested during the deployment of the Australian-led international force to East Timor in 1999. This was not the first time that Australia had led and mounted a joint and combined operation away from Australian shores. In 1994, in Operation Lagoon, Australia had led a multinational force to support the Bougainville peace process. But the East Timor operation was on a much larger scale and was more challenging. The headquarters of the International Force East Timor (INTERFET) was based on the Deployable Joint Force Headquarters, and the Commander of INTERFET, Major General Peter Cosgrove, was truly a joint commander.

In exercising strategic command, the CDF, Admiral Chris Barrie, relied on two organisations that were similar to those that had supported Gration in 1991. Instead of Gration’s augmented COSC, Barrie had the Strategic Command Group. Within Australian Defence Headquarters, Barrie was supported by Strategic Command Division, headed by Major General Michael Keating. This position was analogous to that of ACOPS during Gration’s time.

There was, however, one major difference between command arrangements in 1991 and 1999. In 1991 Rear Admiral Doolan had reported directly to Gration, with Taylor heading Gration’s operations staff. In 1999, initially Cosgrove reported to COMAST, Air Vice-Marshal Bob Treloar, in Sydney, who in turn reported to Barrie, with Keating heading Barrie’s operations staff. That is, there was one more link in the chain. After a short while, however, and because of the international nature of INTERFET, Barrie changed the chain of command so that Cosgrove reported directly to him.

The institution of this command arrangement raised questions as to whether it was necessary to retain Headquarters Australian Theatre. At least two arguments were presented for retaining it. First, HQAST conducted a huge amount of staff work to maintain the force in East Timor. Second, COMAST commanded several separate operations that were supporting the operation in East Timor, and also conducted or supervised other operations that had nothing to do with East Timor: for example, Australia’s commitment to peacekeeping operations. For that reason, despite the INTERFET experience, Barrie decided to retain HQAST. But the experience underlined the fact that Baker had set up HQAST to conduct operations in ‘the Australian theatre’ in the context of a defence policy that emphasised the defence of Australia. It was never intended to deploy it overseas. Once a large force was deployed overseas, it was likely that the CDF would require its commander to report to him.